US Department of Justice

Executive Office for Immigration Review

Office athe General Counsel

5107 Leesburg Pike Suite 2600 Falls Church Virginia 22041

January 282011 Ms Amrit Singh Open Society Justice Initiative 400 West 59th Street New York NYIOOl9

RE Freedom of Infonnation Act Referral from the Department of Homeland Security Office ofInspectol General (OIG) Regarding EOIR Operating Policies and Procedures Memorandum No 99-5

Dear Ms Singh

On December 142010 the Executive Office for Immigration Review (BOIR) received a letter fom the Depaliment ofHomeland Security (DHS) Office ofInspector General (OIG) informing it ofyour FOIA request Specifically it forwarded to EOIR for review the following document Operating Policies and Procedures Memorandum No ~9-5 Implementation of Article 3 of the UN Convention Against Torture

EOIR has decided to release the document because it is publically available You can also find the enclosed document on EOIRs website at httpwwwjusticegoveoirefoiaocijoppm9999 5pdf

Ifyou are n01 satisfied with this decision you may file an appeal with the Office ofInfonnation Policy (OIP) US Department of Justice 1425 New York Ave NW Suite 11050 Washington DC 200530 OIP must receive your appeal within 60 days of the date of this letter The procedures for appeal

are stated at 28 CFR sect 169

~j Christina Burghard Freedom of Infonmition Act Specialist

OIR FOIA 2011-4690 V cc DHS OIG - Atteption Katherine R Gallo Assistant Counsel to Inspector General

Doc 127

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Newsletter Features Physicians

EPIRPolicyonUNmiddotConvention AgainstTortur~

U S pepartment of Justice Executive OfficeforIrrimigrationReview Office of the Chieflmmigratio~ Judge

-May141999

MEMORANDUM

TO AlJ Imniigration Judges

_All Court Administrators -All Judicial Law Clerks All Support Personnel

FROM The Office of the ChiefImmigration Judge

SUBJECT Operating Policies and ProceduresMemoranqtimmiddotNo 99-5 Implementation ofArticleJ of the UN Convention Against Torture

TABLE OFCONTENTS )

L Introduction no Conve~tion Against Torture Claims in RemovaI1Deportation IExdusionProceedings

A Initiating aConvention Against Torture CI~m

A Conduct ofthe Proceedings S Deciding a Convention Against Torture Claim C Warnings Necessary upon a Grant ofDeferral ofRemoval under the Convention Agaimt

Torture D TheEffect ofa Grant ofDefemil ofRemoval undertheConvention Against Torture

E MotionstoReopen

1 AlieosWithFinal OrdersIssued ~y theImni~gtation Court

2 Aliens with FinalOrders who havePending Convention

Agairist Tortur~ Claims withtheINS

lII Convention Against-Torture ClaimsinExpedited RemovalProce~dings (CredibleFear ~DeterniinatiQns)

A ]nitiatingaCo~ventioIi Against Torture CI~imjn Credible~Fltar

~Revi~wProceedings ~ I bullbull ~ ~ bull

E Conduct ofCredibleFearReview Proceedings C neciding a Convention Against torture Claim in CredibleFear Review Proceedings

IV~Convention Against Torture Claims in Administrativ~DeportatiQn or

Reinstatement Proceedings (Reasonable FearDeterminations)

A TnitiatingReasonable Fear Review Proceedings ( E Scheduling Reasqnidjl~Fear Review Proceedings C Conduct ofReasonabl~ Feat ReviewProceedings n Deciding the ClairidnReasonableFearReviewProceedings

middotV Withholding-Only Proceedings

A Initiating Withholding-Only Proceedings B SchedulingWithholdingmiddotOnly Proceedings

C Conduct ofWithholdingOnlyProceedings D De~iding the Claim in Withholding-OnlyProceedings

VI Asylum-Only Hear~ngs

VIT Termination )

of Deferral ofRemoyal

A Introduction

middot)13prqperVenu~ mid Jurisdictionmiddot

c Adj~dicating the INSs Motion or the Ali~ns Request

D Schedulinga Termination ofDeferralHearing and Hearing Notice

ECondlct oftheProc~~dings

F Deciding theTenriination ofDeferral ofRemovafHearing

VIII~DiplomaticAssur~nces Process

Appendix

1 Introduction

bn~February191999 anIntedmregtilationimplem~ntin~the obligations una~rArticleofth~-Uriited Nationsconyention Against Tonure and Other Forms ofCruel Inhuman or TIegradingTre3tment or

Punishment as defm~d in 8 CFRsect20816 (c)(1) (hereinafter cjtcd Conyention Against Torture) -waspublisijed in theFederalRegisterThis regulation became effective pnMarch221999 Article3of

~the Convention Against Torture ~tat~s as follows

~ i i ~LNoStat~paJjyshall expel return (refotileJ) ~r ex4adite apersonto another state wherethereare i ~ middotstib~taJltial~oupd~Jol-b~lieyeniJi]gthatJJ~euld~e-inmiddotdanger-6f-beipg-su~jeeted-t()-torture ~ ~ ~ ~ ~ ~ ~~lt~ Cilt ~~ ~

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RETURN TO HOMEPAGE Temp Visas Green Cards Citizenship Waiting Times Government

Newsletter Features Physicians

EPIRPolicyonUNmiddotConvention AgainstTortur~

U S pepartment of Justice Executive OfficeforIrrimigrationReview Office of the Chieflmmigratio~ Judge

-May141999

MEMORANDUM

TO AlJ Imniigration Judges

_All Court Administrators -All Judicial Law Clerks All Support Personnel

FROM The Office of the ChiefImmigration Judge

SUBJECT Operating Policies and ProceduresMemoranqtimmiddotNo 99-5 Implementation ofArticleJ of the UN Convention Against Torture

TABLE OFCONTENTS )

L Introduction no Conve~tion Against Torture Claims in RemovaI1Deportation IExdusionProceedings

A Initiating aConvention Against Torture CI~m

A Conduct ofthe Proceedings S Deciding a Convention Against Torture Claim C Warnings Necessary upon a Grant ofDeferral ofRemoval under the Convention Agaimt

Torture D TheEffect ofa Grant ofDefemil ofRemoval undertheConvention Against Torture

E MotionstoReopen

1 AlieosWithFinal OrdersIssued ~y theImni~gtation Court

2 Aliens with FinalOrders who havePending Convention

Agairist Tortur~ Claims withtheINS

lII Convention Against-Torture ClaimsinExpedited RemovalProce~dings (CredibleFear ~DeterniinatiQns)

A ]nitiatingaCo~ventioIi Against Torture CI~imjn Credible~Fltar

~Revi~wProceedings ~ I bullbull ~ ~ bull

E Conduct ofCredibleFearReview Proceedings C neciding a Convention Against torture Claim in CredibleFear Review Proceedings

IV~Convention Against Torture Claims in Administrativ~DeportatiQn or

Reinstatement Proceedings (Reasonable FearDeterminations)

A TnitiatingReasonable Fear Review Proceedings ( E Scheduling Reasqnidjl~Fear Review Proceedings C Conduct ofReasonabl~ Feat ReviewProceedings n Deciding the ClairidnReasonableFearReviewProceedings

middotV Withholding-Only Proceedings

A Initiating Withholding-Only Proceedings B SchedulingWithholdingmiddotOnly Proceedings

C Conduct ofWithholdingOnlyProceedings D De~iding the Claim in Withholding-OnlyProceedings

VI Asylum-Only Hear~ngs

VIT Termination )

of Deferral ofRemoyal

A Introduction

middot)13prqperVenu~ mid Jurisdictionmiddot

c Adj~dicating the INSs Motion or the Ali~ns Request

D Schedulinga Termination ofDeferralHearing and Hearing Notice

ECondlct oftheProc~~dings

F Deciding theTenriination ofDeferral ofRemovafHearing

VIII~DiplomaticAssur~nces Process

Appendix

1 Introduction

bn~February191999 anIntedmregtilationimplem~ntin~the obligations una~rArticleofth~-Uriited Nationsconyention Against Tonure and Other Forms ofCruel Inhuman or TIegradingTre3tment or

Punishment as defm~d in 8 CFRsect20816 (c)(1) (hereinafter cjtcd Conyention Against Torture) -waspublisijed in theFederalRegisterThis regulation became effective pnMarch221999 Article3of

~the Convention Against Torture ~tat~s as follows

~ i i ~LNoStat~paJjyshall expel return (refotileJ) ~r ex4adite apersonto another state wherethereare i ~ middotstib~taJltial~oupd~Jol-b~lieyeniJi]gthatJJ~euld~e-inmiddotdanger-6f-beipg-su~jeeted-t()-torture ~ ~ ~ ~ ~ ~ ~~lt~ Cilt ~~ ~

E Conduct ofCredibleFearReview Proceedings C neciding a Convention Against torture Claim in CredibleFear Review Proceedings

IV~Convention Against Torture Claims in Administrativ~DeportatiQn or

Reinstatement Proceedings (Reasonable FearDeterminations)

A TnitiatingReasonable Fear Review Proceedings ( E Scheduling Reasqnidjl~Fear Review Proceedings C Conduct ofReasonabl~ Feat ReviewProceedings n Deciding the ClairidnReasonableFearReviewProceedings

middotV Withholding-Only Proceedings

A Initiating Withholding-Only Proceedings B SchedulingWithholdingmiddotOnly Proceedings

C Conduct ofWithholdingOnlyProceedings D De~iding the Claim in Withholding-OnlyProceedings

VI Asylum-Only Hear~ngs

VIT Termination )

of Deferral ofRemoyal

A Introduction

middot)13prqperVenu~ mid Jurisdictionmiddot

c Adj~dicating the INSs Motion or the Ali~ns Request

D Schedulinga Termination ofDeferralHearing and Hearing Notice

ECondlct oftheProc~~dings

F Deciding theTenriination ofDeferral ofRemovafHearing

VIII~DiplomaticAssur~nces Process

Appendix

1 Introduction

bn~February191999 anIntedmregtilationimplem~ntin~the obligations una~rArticleofth~-Uriited Nationsconyention Against Tonure and Other Forms ofCruel Inhuman or TIegradingTre3tment or

Punishment as defm~d in 8 CFRsect20816 (c)(1) (hereinafter cjtcd Conyention Against Torture) -waspublisijed in theFederalRegisterThis regulation became effective pnMarch221999 Article3of

~the Convention Against Torture ~tat~s as follows

~ i i ~LNoStat~paJjyshall expel return (refotileJ) ~r ex4adite apersonto another state wherethereare i ~ middotstib~taJltial~oupd~Jol-b~lieyeniJi]gthatJJ~euld~e-inmiddotdanger-6f-beipg-su~jeeted-t()-torture ~ ~ ~ ~ ~ ~ ~~lt~ Cilt ~~ ~

f

2- ForthepurPose ofdetermiIling whether there are such grounds the ~ompetent a~thorities shall take middot into account aJI-r~levant considerations inclUding where applicable the existence in the State concerned middot of a consistentpattern ofgro~s flagrant orltlass violations ofhuman rights

This interim regulationbas~d on section2242 ofthe ForeignAffrurs Refonn andRestructuring Act of 1998 (pLI05277Div G Oct211998)will have a significantimpact on theImmigration Court It

middot creates a new type ofclaim which is distinct from asylum Under-section 208 oftheImmigration and middot Nationality Act (INA) and withholding ofremoval tinder section 241 (b)(3) ofthe INA While asylum

officers have some screening functions Immigration Judgeswill have sole jurisdiction to adjudicate middot Convention Against Torturegt claims A successful applicant under the Convention~gainst

Torture willlJe granted withholding of reinoval or deferral of removal Ad4itionall~ this middot ~egUlation creates a ~ewtype of proceeding-to adjudicate applicatio~ for withholding of removal under ~ection241(b)(3) of theINA and under the Convention Against Torture for aliens who have rec~ivedINS altlministrative removal orders under sections 238 and 241 (a)(5) of the INA

Also thismiddot regulation at8 CFR sect 208~18(a) identifies the criteria by which to deterJlline if an act constitutes torture under Article 3 of the Convention Against Torturemiddot

middotn Convention Against Torture Claims in ReniovallDeportation Exclusion Proceedings

~he ovetallhearing process is not changed by the C~nveiltion Against Torture ~owever the Convention Against Torture adds a form of protection from removal and res~lts ~n additional

middot considerationsfor the Immigration middotCourtmiddot

A Initiatinga Convention Against Torture Claim

) A Co~erition 4gainst Torture claim is triggered if the alien eith~r 1) requests co~sideration under the Convention Against Torture or2) presents evidence including his or her testimony and

in~ormation contaiped in a Form 1-589 which indicates thathe or she may be tortured in the middot country of removal See 8 CFR 20813 (c)(1)bull

Convention Against Torture claims must bea~serted bYfiling FormI-~89Application for Asylum

or Withholding ofRemoval QuestJon 7 in part C ofForm 1-589 asks Doyou fear being subject to torture in your home countrY-7There are supplemental instruction~ attach~dtoFormI-589

middot which discuss ConyentionAgainst Torture claims

B Conduct o~ theProceedings

A Convention AgainsfTorture claimwill be adjudicatedln conjunction with all claims (or relie(in middottheremovaJdeportationexclusion proceedings There is no separate hearing to con~ider a torture claim

Itm~sfbe noted however that the-l80-day clockdo~not ~pplymiddotto ~pplication~fot~ithhoiding of removaLuQder sectionmiddot241(b)(3) oftheINA or the Torture ConventionbullAfmding that the alien =filed a frivolousasyluin application does not preclude an alien froni being granted withholding of removal undersection241(b)(3) oftheINA or the TorlureConvention Se~ 8 C~F~Rsectmiddot208j9

middotC Deciding a Convention AgainsfTortu~cmiddotCIaim

~ - middotin ~Qnsider~ngthe COD~~tiOwg~inmiddotstTort~~~~~laiw~tbe1mpiig~QnJ~~g~~~~~r~~~te~ntine--t-- i il l1f~~~Jt~r11e)menhas establishedithanfis)mqr~middotUJteJytltanJlot-thafhe or she wotildmiddotb~J9rt~re~nf

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removed to thepmiddotroposed countrymiddot of removal See 8 CF ~R sect20816(c)(4) The IImore likely than notll standardis the same standard as withholding of removalunder sectiomiddotn241 (b)(3) ofthe INA

and withholding of deportation under the former section243(h) of the INA

Once theImmigration Judge determines that the alien is entitled to Convention Against Torture protection hemiddot or she ~usf then decide whether the alien is subject to mandatory denial under one of the bars contained in section 241(b)(3)(B) of the INA See 8 CFR sectsect 208~16(c)( 4) 208~16(d)(2)

If an Immigration Judge decides that the aiien has mefhis or her b~rdenofproof and that the alien is not subject to the bars contained in section241(b )(3)(B) of the INA~the ~mmigration Judge must grant theillien withh~lding of removal Agrant of withholding of removal under the

Convention Against Torture has the same consequenc~s as a grant ofwi~hholding of removal under section 241(b)(3) of the lNAie the alien may not be removed toa country where it has

middot been determined that it is J1ore likely than not that lie or she would be tortured The INS or the alien may appeal theIm~igration Judgesmiddot decision to the Board of Immigration Appeals (BIA)

middot Ifan IIpinigration Judge decides that thealien has met hisor her burden of proof for Convention Against Torture protection but is subject to the bars contained in sec~ion 241(b)(3)(B) of the ~A

iamp the alien is a persecutor ofothers a security threat or has been convicted for a particularly serious middotcrime the ImmigrationJudge must deny the alien ofwithholding of removal tinder the Convention Against Tortllre and grant the alien deferral of removal under 8 CFR sect 20817 See 8 CFRsect 2081~(c)(4)

DWarningsNecessary upon a Grant of DeferraIof Removal under the Convention Against _ middotTorture i

) If an Im~igratio~ Judge grants deferral of re~~~aluilde~ the Conveh~on Against Torture heor middot she must inform the alien that

1 Deferral of removal does not confer any laWful or permanent immigration status on the alien

middot2bullIf the alien is detained he or she may not necessarily be releasedby the INS

3 Deferrid of removal is effective only until terminated

4 Deferral of removal maybe terminated ~ase(1 upon the aliens ~equest middotor a motion fr~m the INS

middotSigteferral of-removal only precludes the INS from removing the alien to a particular country or countriesin which ifhaSbeen determinedmiddotthat the alienislikely to be tortured the alien may be

removed atanymiddottime toanother country

See 8 CF~Rsect20817(b) I

JtThemiddotEffect ora Grant orDeferral of Removal under the Convention Against Torture

The INS m~ynot remov~ an~alienwhohas been granted defe~ral of removaltoa countIyinwhich -iUs moreJikely thannotthat he or she would be tortured A grailt of deferralc~f removaTis

j similarmiddottoa grantof withholding of removal in ~hat it precludesmiddotthe INSfromremovingmiddotthe alien _ middot0~pecifiC4oul(ltryen0See8poundER~middotsect2o8la(~ltT4tcJNS-m~Yi~oweverydetamanalien-g17arifedmiddot ) (

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shyevidence that was not presented at the previous hearingtorevi~w whether the alien should continue to have protection undermiddottheConyention Against Torture See 8CFR sectsect 20S17(c)

20811(d) partVII ofthis OPPM The INS or the alien may appeal the Immigration Judges decision to theBIA

F Motions to Reopen

Aliens with final orders may movet6 reop~Jlmiddottheir proceedings in order to apply for withholding of removal under the Convention AgainstTorture Specifically the regulation addresses two

groups of aliens who mayfIle Ipotions to reopen 1) aliens with final orders who have not previously sought protection under the Convention Ag~inst Torture and 2) aliens withfmal

orders who have previously filed claims for Conven~ion Against Torturepro~ection with the INS

1 Aliens with Final Orders Issued by the Immigration Court

A~ens with final orders of removal ~eportation or exclusion piay fde a motion middotto reopenforth~ sole purpose of asserting a claim fiJr protection and under the Convention Against Torture The int~rim regulation provid~s for an exception to the time and numerical limitations on motions to reopen for aliens who have a final order and seek to reopen their cases for the purpose ofmaking

middot a Convention AgainsfTorture middotchiimThe specific require~ents are fOMd at 8 CFR sect 208~18(b) (2) This motion to reopen IDust nieet the motion to reopenreqnirements as set forth in~ CFR sect middot323 and1) be filed on or before June 211999 and2) show that the alien is prima facie eligible for Convention Against Torture protection S~e 8 CFR sect 208~18(b)(2) There is no fee for the filing

of th~ motion

J q2 Aliens with Final Orders who ~ave Pending ~onvention Ag~inSfTortu~e Claims with the INS omiddot bull bull bullbull

~efore the issuance of the interim regulation theINS had an administrative procedure in which aliens with final orders could requesta stay of deportation or removal pursuant to Article 3 of the

Gonvention Against Torturebull Aliens who madea Convention AgainsfTorture claim with the INS on or before March 221999 and whose claim was not finally decided on or before March22 1999 willreceive a Jlotice from the INS See 8CFRsect20S18(b)(3)(iimiddot

The interim regulation prov~des that an alien who applied with theINS underitsadministrative middotprocess shall have his or her casereopeD~d based on evidence ~hat he or she applied withtheINS forConyention Against Torture protectionon or befor~March221999aDd middotthe IN~ bad not

middot made a tinal ~ecision See 8 CFRsect 208~18(b)(3)(ii)(A)bullIf the alien provides a copy o( the notice ~ttachment A) or other convincing evidence showing thailie or she has a request for middotConventionAgainst Torture protection pending with the INS theinter~ regulationreq~res do

middot~he motion to reopen be granted For this gro1p of aIiens-the regulation ~oes not ~pecifya middot deadline ~ywhich the motion to reopen must~e filedmiddot

UrmiddotC~pvention Against Torture qaims in Exp-edit~dRemovarProceedings (Credible Fear Determi-ations)

AInitiating aC~nventionAgainst Torture Ciailnin CredibleFear ReviewProceedings

Iheinterim re~laJiqp allows aD al~en to raise a Convention Agains~ Tort~re ltla4n thro~ghthe

centStablishe(J cr~dlbeJ~~~proc~ss~in~xpedited r~movaI ~()ceedin sSee$ C~F~R middot2~8~O 342 (0) t~ ecte 1 ~f~~middot~p~~~~~ur~~l~~~middot~s~~qt~aIL~~un~haJig~d~ ~e~ i-9reyen 7~~iJf~~~~~r~~-rorCredible r~f1H~i~~~ ----- - -_----_-_-=-- ___-- ----___--- - ~--------- ---__ ---- -~ - ---__--_---==---___-__----

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Fear andCl~inied Status Reviews~However pursuant to theinterim regiilationsthe I~inigration Judgeand th~ a~ylum offker must now also consider whether the ~lien has a credible fear of persecution andor torture A credible fear review proceedingis initiated when the INS files Form I-863 with either block ~flfl or block 2 checked with the Immigration Court bull

R Conduct of Credible Fear Review Proceedings

fts noted above considering ConventionAgainst T~rture claims in ~redible fear review proceedings does not change the process The procedures and policies ~escrib~d in OPPM 91-3

Procedures for Credible Fear and Claimed Status Reviews remain in effect and cover all credible fear review proceedings including those when the alien claims a credible fear of torture

middotCoDeCiding aConv~ntionAgainst Torture CI~i~ in Creciibl~middotFearReviewmiddotProceedings

The Immigration Judge shall make a de novodete~mination ofwhetherthe alien has a credible fear of persecution andlor torture If it is determined that the alienhas a credible fear of

~persecutionmiddot or torture theiinniigration Judge will vacate the INSs expedited removal order Alternatiyely if it is determined tliat the alien does not have a credible fear of persecution or torture the Im~igtation Judge will affirm the asyluin officers deteriniDa~ioli and remand the case to the INS_f~r execution of removal See 8CFR sectsect342(d) 3A2(~

IV Convention Against Torture Claiins in Adtii~istrativenep~rtation or Reinstatement Proceedings (Reasonable Fear Detelminatioits)

~he interim ~egulation creates a new type of proceeding called a reasonable fear reyiew pro~eeding which is modeled on t4e credible fear process Reasonalgtle f~ar review proceedings

will be available to aliens who have been ordered removed by the INS under section 238of the INA (c~vering aliens who are not lawful permanent residents and have-been convictedofan aggravatedf~lony) and under section 241(a)(5) of the IN~ (reinstatement of removal orders) This proceeding was created to consider whether such an alien is eligil~lefor withholding of removal under either241(b)(3) of the INA or the Convention Against Torture

Underthis processan alienwhQ has been orderedmiddot removedby the INS and expr~ssesa fear of persecution or torture~will have his orher claim screened by a~ ~sylum officerbullSee 8 CFR sectsect

~38~l(f)(3)2418(d)20831(b) The asylum offic~r must use the reasonable possibility of torttire orpersecution standard See 8 CFamp sect 20831( c)As defined m the regulatioIi~ this standard is ~n effect equivalent to the standard used to adjudicate asylum applications See 64Fed Reg 848 8485 (Feb 191999) This standard is highermiddot than th~ cr~dib~efearff standard

i~ the asylum officerfiudsthatthe aIi~n has a reasonable fear ofpersec~tion or t~rture the alienwillbe referredto the Immigration Court foni withholdingonlyproceeding See 8 CF~Rsect 208~31(e) parry ofthisOPJgtM~If the asylum officer determines that the alien does nothave a reasonable fear of persecution or torture the alien mayrequestanlmmigration Judgeto review the a~ylum officers negative determination in areasonableJear review proceeding See 8eFR sect 208~31(g)This request triggers a reasonabIefear revi~wproceeding

(

AInitiating Reasonable Fear Review Proceedings

~) Ar~~sonaple (ear review prQceeltli~gisinitiated~hen th~ ~NS files withtIiejwwgorti~p 9Q~rt a ~j rl~~~PJ~$ti~ w~thmiddot~lockfl5~flth~~~~d~~~~i~gwitJl~Q~mI-8(i3 thelNSsh3llasoBr0vi4et~~~wcento~~

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B Scheduling Reasonable Fear Review Proceedings

The r~asonable few determi~atiori was designed to provide for a fait resolution ofwithholding of deportation or removal claims eit~er und~r section 241(b)(3) of theINA or the Convention Against Torture without disruptmg the op~ration of administrative removaland reinstatement of

removal proceedings See 64 Fed Reg 8478 8485 (Feb bull 19 1999)In the absence of exceptional circumstances a reasonable fear review proceeding shall be conducted within 10 days of the filing of Forni 1-863 with the lmmigration Court ~8 CFR sect 20831(g)(as corrected at64middotFR1388l shy

(Mar~h231999)

A hearing notice entitled ~Notice ~fReview ofReason~bl~ Fe~r Hearing bas b~en created in ANSIR for these cases See Attachment B (notice T9) The hearing notice mu~t besent to ~he alien

in care of his or ~ercustodialmiddotautbority and his or her attorney ifany via an appropriate overnight courier Service ofthe copy of the hearing notice shall be sen~ to t~e INS via regular mail See Interim OPPM 97-2 Notices ofImmigration Judge Hearings partU B 2

i j C Conduct of ReaSonable Fea~Review Proceedings ~

Th~ interim regulations do not describe how rea~onable fear review proce~dings will be conducted However as t~es~proceedings resemble credible fear review proceedings much ~f

their conduct will be modeled after credible fear review proceedings See 8 CFRsect342 OPPM 97-3 Procedures for Credible Fear and Claimed Status ReViews A Record ofProceeding (ROP)middot will be created for each reasonable fearreview determinatioilproceeding The red ROPjacket usedfot crediblefear review determinations should be used for these cases TheROP should be organized with the left sideofthe ROP containingtheimmigration Judge worksheetmiddot (administrative side) and the rightside containing Form 1-863 any submissions filed along with Form~-863 any written hearingnotice(s) andJhe tape envelope~ See OPPM 973 Procedures for ~redi~leFear and ClaImed StatusReviews partlV

TheIm~igration Judge must tape record the reasonable fear revieW proceeding The tape(s) must be labeJed so that they are distinguishable from other types ~f proceedings (eg Reasonable Fear Reviewtt) Although the tape(s) will not normally betranscribedmiddotthemiddottape will remain in theROP

lheIinmigration Judge may conduct p[oceedings~yvideo conference (~8 cF~sect325 (e) ~oweverthelnterimregulati~ns unlike the regulations governing crediblefearproeeedings at8 CFR sect342 donotaddress whether areasoilable fe~rreview may bemiddotconducted telephonically without-the consent of the alien There~ore inthe absence ofaDyr~gulations specifically governingthe conduct ofthese proceedings it is leftto the discretion ofthelpiniigration~udgeto

determine themiddotissue

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interpreter is notavaHable for the hearing the Berlitz Unscheduled Telephoniclnterpreter (UT Service) should be used If the UT Service is unable to assist the ATampT LailguageLine may be

used

With regard to representation in reasonable fear review proceedings thdnterim -regtilation~ aremiddot agaiIi silent However the interim regulations specify that the alien maybe represented by counsel

in the asylUni officers reasonable fear interview ~ 8 CFRbullsect 20middotS31(c) ~~lso8 CFR sectsect 316(b) (governing the right t~ representation generally) 342 (c) (the right to consult pmiddotrior to credible fear review)Since there is no specificregulatory guidance on this pointthe issue is left to the discretion of the Immigration Judge

D~ D~ci~mg the Claim in Reasonable Fear Review Proceedings

Thelmmigration Judge must make a de novo determinati~nofwhether the alien has established a reasonable fearofpersecution andor torture As noted previously the reas~nable f~ar of

torture ~r persecution standard is higher than the u~rediblefear~ standard al1d is the standard middotusedmiddotto adjudicateasylum applications See 8middotCFR sect208~1(c)middot64middotFed Reg 8478 8485 (Feb

191999)A specialord~r for reasonable hear reviewproceedings hasbeenmiddot established in ANSm See Attachment B (orderX8) If theImmigration Judge finds that the alien has established a reasonable fear ofpers_ecution anltVor torture the Imlpigration Judge shall render an order

stating that finding The 9rder includes a notice that by operation of regulation the alien is pla~ed jnto withholding~only proceedings During the new withhoiding-orily proceedings the Imm~gration Judge shall ~ilow the alien to submit Forni 1-589 See 8 CFR sect 20831(g)(2) part V of this ~PPM IftheImmigrationmiddotJudgefinds that the alien does not have a reason~ble fear of

persecution qr torturemiddotthe case shall be returned t9 the INS for removal of the alien

)

The~e is no appeal fro~ an I~migration Judges decision in a reasonablefea~ determination by either the alien or the INS See 8 CFR sect20831(g)(1)

V Withhoiding-Only Proceedings

Under the inter~ regulations alie~s in administratiye removal proceedings under section 238 of

thelNA and aliens subject to reiiistatem~nt of removal under section ~41(a)(5) of the INA will D0w be able to apply for withholding ofre~oval undermiddotsection 241(b )(3) of the~A as well as the

Conv~ntion Against Tottur~ after a screeniIig process by an asylum officer ~escribed in Part IV above

A~nitiating Withhol4ing-Only Proceedings

Awitliholding-orilyproceeding way be ~itiated in two ways

1) when an asylum officer finds that the alien established it-reasomltile fear ofpersecutiori or tortureand thcJNSfIlesForm I -863 with block 6 cnecked -with middotthe IminigrationCourt or

~2) whenanImmigration Judge determines that the alien has a -reasollablefear ofperse~ution or torture inareasol1ablefe~r reviewproceeding The INS does not need to file anotherFormI-863 ~to begin withholdirig-onlyproceediiJgs~ The Immigration Judgesfinding ofreasonablefear

triggersthe comm~nceIilent ofwitlIholding-onhproceedings~8 CF~ sectmiddot20831(g)(~)

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~for withholding of removal under section 241(b )(3) ofthe INA andmiddottheConveJlttruAg~inst Torture The process ~ssimilar to an asylum-onlYhearing pursuant to 8 CFR sect 2082(b)

B Scheduling Withholding-Only Proceedingsmiddot

Withholding-o~Iy proceedings Iike~the credible fear and reasonablefear proceedings will likely middot involve detained aliens Iii such circumstances these matters should be scheduled according to the normal scheduling procedures for detahied aliens~ The 180-day clock does not apply in wi~hholding-only proceedings The 10-dayperiod in removal proceedings (14 days in deportation proceedings) required to allowan alien to secure counselpursuant to section 239(b)(1) of theINA does not apply in these cases In scheduling and adjudicating these cases-the Immigration Judge sh~uld balance the dictates of due process concerns with regulatorycQD1pliance concerns

The hearing notice ~ntitled Notice ofWithholding-Only H~~ing (see Atta~hment B (notice T8raquo must be sent to themiddotalien in care of his or her custodial authority and his middotor her attorney if any via an appropri~teovernight courier Service of the copy of the hearing notice shall be seQt to theINS via regular mail ~mterim OPPM 97-2 Notices oflmmigration Judge Hearings part middotllmiddotB2 bull

C Conduct of Withholding-Only Pr~ceedings ~

The interim regulations do not describe the required conduct-ofwithholdingonly proceedings bull middot However as these proceedings resemble asylum-only proceedingstheir conduct will be modeled

after asylum-only proceed_ngs as set forth at 8 CFR sect 2082(b) except tbat withholding~)J~ly proceedings are limited to whether the alien qualifies fo~withholding of deportation or removal ) under sectio~241b)(3) of the INA or the gtConyention Against Torture or ~eferral of removal under the Convention Against Torture

middotTheImmigration Court wiIlusethe blue ROP jacketJorwithholding-only proceedings The middot Immigration Judges order-rmding that the alien has a reasonable fear ofpersecution or torture or

middota Form1-863 with block 6tf checked will be the mitialdocument in fhe blue withholding-only ROP TheIm~igration Judge must commence the withholding-only proceedings using a new tape bull

~t the initial appearance befGre the Immigration Judge the alien shall be given adequate fimeto

prepa~e and file a Form 1-589 with the Immigr-ation Court Once Form 1-589 is receiveda ~opy of i theapplicationmust be forw~rded to theState Department and the Immigration Judge lllust schedule a hearing on the merits

Thelmnigration Judge may conduct anyproceedingbyvideo conference (see 8 CFR sectmiddot325(craquo) however the interim regulations (10 not address whetherawit~holding-only proceeding maybe

conducted telephonically without the con$ent of the alien Therefore in the absence orany rcgulations~pecificaIlymiddotgoverningmiddotthe conduct ofthese ptoceedings itislefttothediscretionofthe Jmmigration Judgemiddotto determine the issue

Han inte~preter is necessarythe Immigration Court must provide one Ifa staff ora contr~ct interpreteris not available for the hearing the UT SerVice should be usedlfthe~UTservice is unabkto assistthe ATampTLanguageLine may be used

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middot Inthe withholding-only hearing the scope of the Immigration Judges ~djudication is limited to considerationmiddotof the aliens withholding of removal application under 8 CF~R sect 20S~16 See S C~FR sectsect 20S31(c) j20S31(g)(2)(i) The Immigration Judge shall rule on whether the alien is

eligible for withholding of removal under section 241(b )(3) of the INA or whether the alienis eligible for withholding ofremoval under the Convention Against Torture A standard order has been generatedin ANSm for withholding-only proceedings See Attachment B (order Q5) Jraquoursuantto 8CFR sect 20816(c)(4) ifth~ Iminigration Judge determines that the alien is more

likely than not to bemiddottorturedin the country Qf remov~l he or s~e must either grant withholding of removalmiddotor deferralof removal depending on whether the alien is subject to the bars inmiddotsection 241(b)(3)(B) of the INA

Both the alien and the INSiIiay appeal the Immigration Judges d~cision totheBIA See 8 CFR sectsect20831(e) (g)(2)(ii)

VI Asylum-Qnly Hearings

Under 8 CFR sect 208~2(b)Immigration JultJges have jutisdiction over asylum ~pplications fll~d by certain aliens who are not in removal deportatiOJl or exclusion proceedings Since a Convention Against Torture claim is considered an asylum applicationforpurposes of section 208 ofmiddott~e regulations (see 8 CFR sect 2081(araquo an alien who is in asylum-only proceedings pursuant to 8

CFR sect 2082(b) maYalso apply for withhoiding ofremoval under the Conventio~Against TortureIn an asylum-onlyproceeding block3- onmiddotForm 1-863 must be check~d

VII Termination ofDeferral of Removal

~) A Introd~ct~on

middot One of the differences between being granted withholltJing of removal and ~eferral of removal under 8 CFR sect20817 is the process for terminationA grant ofwithholding of removal under

middot either section 241(b)(3) ofthe INA or tlie Convention Against Torture may be ~~rminated through amotion to reopen See 8 CF~R sect 20822( e) ~y contrastthe process to middottermipate deferral of rem~gtval does not involve a motion to reopen rather the INSmust file a motioIi to schedule a hearing to co~sider the termination ofdeferralof temoval with the III1migration Court This Q1otion shallbe granted ifit isaccompanie4 by evidence that is relevant to th~ possibility that the middotalienwould be tortured in themiddot country to which removid has been deferred that was not presented at-tJte previous hearing TheINS motion need not meet the ordinary motion to reopen

requirements See SCRR sect208~17(d)(1)

If anImmigniti~n Judge grantsINS motion to schedulea hearing to con~ider the termination of the deferral ofremov~l he or she shall then conduct a hearingbased on the record of proceeding aIidany new evidence presented by either the INS or thealienand shallmakea de novo determination ofwhetherit is more likely than not that thealienwouldbetorturediIit~e countly

ofremoval ~ 8 CFRsect208l7(d)(3)

Analienmay make ~ written request to terminate his orher deferralofremovaISee8 CFamp sect 208~17(e) The Immigration Judge mayholda hearing to deteroiine whethermiddotthealiensrequest -was knowingand voluntary However if the Immigration Judgeisabkto determine that the

j requestYas~owing andvoluntary onthe basis o~t~ewrittenmiddots~bmissionmiddota he~ringjs not __ Deces~al ~ee 8middotCF~ sect20817(e) ---_--_____

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BfmperVenue and Jurisdiction

i The INSs motion to schedule a hearing to consider the -termination of deferral of remoyal or the aliens request to terminate deferral of removal must be filed with the Immigration Court which issued the order granting deferral of removal ~8 CFrt sectsect20817(d)(1) 208~17(e )(1) If-such motion or request to terminate deferral of removal is filed with another Court it must be rejected forlack ofproper venue

C Adjudicating the INSs MotioD or the Aliens Request

Thelmmigration Judge niustadjudicate an INS ~otion to sch~dule a hearing to consider termination of deferral in accordance with 8 CFR sect 20817( d) (1) The aliens requestio terminate deferral must be coIisidered pursuanfto8 CFR sect20817(e)~ The regulation is silent regardipgwhether the Immigration Judges de~ision on the motion-to schedule ahearingis appealable

D Sch~duIiDga T~rmination H~rjng and Hearing Notice

If the Immigration J tidge grants the INSs motion to schedule a hearing to consider termination of ~efetral the ROP m1lst be obtained A ilotice ofhearing must be sent to the alien at an address prov~ded ~y themiddotINS See Attachment B (notice X9) To aliow the alien time to secure representationthe hearing should not-be scheduled earUer than 10 days for removal proceedings

(14 days for deportation ptoceedings) after service of the notice The notice will inform ~he alien of -the nature ~fthe hearing Itwill also informthe alien that he or she may supplement the

information in his or her ForniI-589 application no later thanlO calendar days ofmiddotservic~ ofthe - notice (or 13 calendar days if servi~e of the notice was by mail) At the endl~ the 10middot days (or 13

days)a copy ofthemiddotoriginalForm 1-589 any supplemental information the alien or INS submitted and a notice stating the date time andpJace of the termination hearing must be sent t9 the State DelJartment See ~ CFR sect20817( d)(2) ANSIR ha~ middotbee~ modified to generate alletter to the State Department spccifically for ahearing to terminate deferr~l of removal See Attachmelt B (letter S8)

middotEConduct ofthe Proceedings

At t~ehearingthe Immigration Judge ~ay only deterIIiinewhether it is more likelymiddotthan not that the alien will be tortured in the countrymiddotto which removal has been deferred TheImmigration

JudgeshaU make~de novo determination baled onthemiddotrecord of proceeding and initial application as wella~ any new evidence pr~sented by thealien or the INS The burden is on the alien to establish that it is more likely-than not that he or she will be tortured in the country which

_ rem~val has been deferred See 8 CFR sect20817( d)(3)~

I

F Deciding heTermination of Deferral of RemOval

The Immigration Judge must determine whether theaIienhas met his or herburden ofshowing thafitis morelikely than not that he or she will be torturedinthe country to which removal has middotbeen deferred Seemiddot8 CF~R sect 20817(d)(4) Ifthelmmigration~udge (Ietermine$ that thealienhas

not mefliis other burden of showingthat it is morelikely than not that h~ or she wil~be tortured middotin thecounhTto middotwhich removal has been deferred thelmmigration Judge shall t~r~inate the

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relilovalhas been deferred the Immigration Judge shall o~dermiddotthatthe deferral ofremoval remain in place ~ 8 CFRsect208~17(d)(4)

Both the alien and the INS may appeal the Immigration J~dgefs decision to theBIA See 8 CFlt sect208~17( d)( 4)

VIIIDplomatic Assurances Process

Theinterim regulation provides for a process calleddiplomaticassurances against ~orttire See 8 CFR sect20818(c) In the event that the Attorney General themiddotDeputyAttorney General or-the INS Commissioner has determined that the diploinatic assurances are sufficiently reliable to allow

the ali~nsremoval to a country where he or she fearS torture anlinmigtation Judge may no long~r consider the aliens Convention AgainstTorture cIaimSee8 CFR sect 208~18(c)(3) The

Jmmigration Judge may howtver~ adjudicate any other pending applications including asylum and withholding of deportation or removat

If there are any questions concerning this OPPM the interim regwation ormiddot the Convention Against Torture please contact Michael Straus at (703) middot3051247

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IslMichael J Creppy ChiefImmigration Judge

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